Introduction Historical Context
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INTRODUCTION China-Africa ties have expanded beyond trade and investment in extractive industries to engagement in telecommunications, infrastructure, manufacturing, finance, media, agriculture and peace and security issues. HISTORICAL CONTEXT While not as well documented as Africa’s links with Europe, China-Africa relations date back to the Ming Dynasty (1368-1644) when a series of expeditions reached East Africa under the command of Admiral Zheng He, at roughly the same time as the Portuguese were exploring Africa’s Atlantic coast. However, formal political relations were only forged during the early years of the founding of the People’s Republic of China (1949), which intersected with the first wave of African independence. The Five Principles of Peaceful Coexistence were originally established in 1954 by India’s prime minister, Jawaharlal Nehru, and the Chinese premier, Zhou Enlai. These principles rose to popularity during the 1955 Bandung Conference – which paved the way for the founding of the Non-Aligned Movement – and have become an important basis for China’s foreign policy and its relations with Africa and Asia. China’s support for Africa’s liberation also played an influential role in shaping the outcomes of newly independent states. 2015 is also 60 years since the 1955 Bandung Asian-African conference, a turning point of world history when for the first time representatives of the former colonised nations united and proposed alternatives to a world order dominated by superpowers. - Remarks by African Union Commission Chairperson, Nkosazana Dlamini-Zuma, 30 January 2015. …The relationship between ourselves and China is founded, as the Prime Minister reminded us recently, on four basic principles: treating each other sincerely and equally; consolidating solidarity and mutual trust; jointly pursuing inclusive development; and promoting inventive practical cooperation between our countries. The Standard Gauge Railway is an especially clear application of these principles… - Remarks made by Kenyan President Uhuru Kenyatta during the signing of the Standard Gauge Railway Agreements, 11 May 2014 Historical Highlights 1956: Egypt was the first African country to establish official diplomatic relations with China. China currently maintains diplomatic relations with 54 African states, with Sao Tome e Principe (2016) and South Sudan (2011) being the most recent. 1971: China secured a permanent seat on the UN Security Council with support of 26 African states (34% of the General Assembly votes). 1970-75: The most celebrated Chinese development assistance project in Africa was the Tazara railway, requested by the previous Zambian president Kenneth Kuanda and his Tanzanian counterpart, Julius Nyerere. China’s ‘Opening Up and Reforms Policy’ under Deng Xiaoping was launched in late 1978, beginning a period of incremental change towards its domestic economy and producing massive development gains over the next three decades. This was followed by an African tour under Premier Zhao Ziyang during December 1982-January 1983, where the ‘Four Principles on Sino-African Economic and Technical Co-operation’ was announced, re- formulating solidarity aid to ‘mutual interest’ as the basis for economic co-operation. China’s economic involvement in Africa remained miniscule up to the mid-1990s, but this began to change with CNPC’s investment in Sudan’s oil sector in 1995. For more on historical relations see SAIIA’s 2009 China-Africa Toolkit: http://www.saiia.org.za/images/stories/research/chap/chap_toolkit_200909.pdf. CONTEMPORARY RELATIONS The Forum on China-Africa Cooperation (2000-present) The Forum on China Africa Cooperation (FOCAC) was launched in October 2000 in Beijing as a tri-annual collective dialogue platform for co-operation between China and Africa. In many ways it is an exemplary form of South-South co-operation, demonstrating the strengths of utilising an incremental and practical approach to tackling development issues of mutual concern. FOCAC has been hosted in: o 2000 – FOCAC I, Beijing, China o 2003 – FOCAC II, Addis Ababa, Ethiopia o 2006 – FOCAC III, Beijing, China (China’s first Africa Policy published) o 2009 – FOCAC IV, Sharm El Sheikh, Egypt o 2012 – FOCAC V, Beijing, China o 2015 – FOCAC VI, South Africa (China’s second Africa Policy published) o 2018 –- FOCAC VII, Beijing, China (forthcoming) Page 2 The 2012 FOCAC, convening against the backdrop of the ‘Arab Spring’ and regime change in Libya, brought home the risks to growing Chinese economic interests operating in Africa. The ministerial meeting was most notable for its promotion of a China Africa Cooperative Partnership for Peace and Security, which sought to provide financial assistance, capacity building and other forms of institutionalised support for Africa’s efforts at fostering peace and security on the continent. It reflects new thinking within Beijing, despite its official ‘non- interference’ policy, about the necessity of engaging more deeply in stability and peace building in Africa in light of difficulties experienced in a range of countries. Significantly, the African Union (AU) was made an observer of the FOCAC process during the ministerial meeting, paving the way for closer forms of collaboration across all sectors. It is Africa’s challenge to take advantage of China’s willingness to engage the continent on a range of political and economic issues. Creative interventions and creating appropriate regulatory frameworks on Africa’s part can expand and consolidate the…partnership… - China, Africa and South Africa by Garth le Pere and Garth Shelton (2007), p. 159. The most recent iteration, the sixth FOCAC, took place in Johannesburg on 4-5 December 2015, as the first summit of its kind to be hosted on African soil. It convened against the backdrop of China’s slowing economic growth and the concurrent fall in commodity prices, which have impacted negatively on bilateral trade and investment. These new realities, termed ‘the New Normal’ by President Xi Jinping, also put the tspotlight on other areas and opportunities for collaboration as opposed to the commodity fuelled growth of the past two decades. The current action plan covers a range of areas (including retained focus on energy, transport infrastructure development and trade). Interestingly, social concerns have also featured more prominently such as industrialisation, health, agriculture, people-to-people links and habitat protection and issues surrounding wildlife (see more on SAIIA’s work on the ivory trade in 2016). Still it remains to be seen the extent this recognition will translate into action. Another important landmark in South Africa-China relations was the assumption by South Africa of the Co-Chair position of the Forum on China-Africa Cooperation (FOCAC) at its 5th Ministerial Conference in Beijing in July 2012. South Africa sees China as a key partner in the implementation of some of the grandiose infrastructure and other development plans on the continent. - Media briefing remarks by Maite Nkoana-Mashabane, South Africa’s Minister of International Relations and Cooperation, 27 November 2014. The most reported outcome has been the $60 billion (R861 billion) development package pledged by President Xi to the continent. Importantly, this pledge needs to be further unpacked as it includes various kinds of support (for more on the breakdown see: Brautigam and Xue). Much of this is likely to be implemented at a bilateral level – with the particular details announced during high-level visits (like the traditional annual visit to the continent by the Chinese Foreign Minister at the beginning of each year). At the same time, China is strengthening its parallel engagement with the African Union and sub-regional organisations like the East African Community. Page 3 It is likely that FOCAC VI will give reference to new issues and circumstances, such as China’s economy’s “new normal,” the recent Ebola outbreak in parts of Africa, the changing peace and security environment, and the seriousness of the global illegal wildlife trade. Of particular interest are the actual details about how these issues will be approached and what specific links are made between them and China’s broader global initiatives. - Yu-Shan Wu, excerpt from commentary on FOCAC VI, ‘The China Africa Relationship: Crossroads or Cliff?’, China File, 24 November 2015. Read more on FOCAC: Background and 2015 Focus Priorities; China-Africa: a maturing relationship? Growth, change and resilience. China’s Evolving Engagement: the global financial crisis and beyond For Africa, an important marker of the transformation from a ‘Northern’ dominated world to the rise of emerging powers was the global financial crisis which began in late 2008. The ability of the Chinese economy to weather the crisis, in contrast with the negative impact on the European and US economies, marked a fundamental shift in favour of leading developing countries like China. African countries have sought to emulate China’s ‘development lessons’ and integrate these ideas into their own national planning programmes. China is increasingly replacing the West as the new face of globalisation in Africa. - China in Africa (2007), Chris Alden p. 129. With the onset of a new generation of Chinese leadership in 2012, Xi Jinping sought to articulate foreign and economic policies commensurate with China’s global status. This focused initially on the promotion of a ‘China dream’ that would resonate with other, particularly developing-world societies, and was coupled